cd01 hertsmere ldf issues and options · 1.0 the hertsmere local development framework 1.1...

Hertsmere Local Development Framework

Issues andOptions

HertsmereBorough Council

February 2006

Contents Page

Foreword 1

1. The Hertsmere Local Development Framework 3

2. Conformity with other Plans and Policies 4

3. Preparing the Core Strategy, Site Allocations and

Development Control Policies 5

4. What the Council has done to date 6

5. The Community Strategy and the Local Strategic Partnership 6

6. Policy Objectives for the LDF 7

7. National and Regional Planning Policy 8

8. The Key Issues for Hertsmere 15

9. Housing 17

10. Building Sustainable Communities 21

11. Open Space and the Environment 24

12. The Economy 29

13. Transport and Parking 31

14. Town Centres and Shopping 33

15. Site Allocations: Identifying sites for protection or development 37

16. Development Control Policies 41

17. Responding to this report 43

18. Future Options for Hertsmere 45

King George Recreation Ground, Bushey

Foreword

This document marks a key point in planning for the future of the Borough. It also marks a

real change in the way we consult you on future plans.

In 2004 a new planning system was introduced, changing the way Hertsmere and other

local councils plan their areas. The old system of Structure Plans prepared by county councils

and Local Plans prepared by district councils has been replaced by one focusing on a Local

Development Framework (LDF) - a folder of documents setting out how the local area can

change over the next fifteen years.

This report sets out a range of options for how the Borough could develop up to 2021.

These options propose different scenarios for development, recognising their different

impacts on meeting social and economic needs and the extent to which the Borough’s

character and appearance will change.

We would welcome your views on the key strategic choices for the Borough. These include:

- Deciding the most sustainable locations for new housebuilding

- Ensuring there is sufficient land for community facilities and infrastructure

- Whether to protect existing and attract new employment opportunities

- How to ensure that younger households remain in the Borough

- How to respond to the needs of an increasing proportion of elderly people

- Where large new commercial development should be focused

- Maintaining and improving the appearance of the urban and rural environment

- Dealing with levels of car use and the need to travel further for services

- How best to maintain vibrant and viable town centres

- The re-use of disused farm buildings in the Green Belt

- How to promote the provision of renewable energy sources

Hertsmere Borough Council has not decided which options it prefers and will begin the

process later this year. The views of stakeholders and the public on these options will be a

very important consideration in making this decision. We will consult again on our preferred

approach later in the year before we finalise the Core Strategy and other key LDF

documents.

I hope you will take the opportunity to examine the options and respond with your

comments and preferences. I look forward to seeing what local people, and others with an

interest in Hertsmere’s future, have to say.

Councillor Rebecca Foy

Portfolio Holder for Resources and Performance Improvement

Issues and Options 1

Centennial Park, Elstree

1.0 The Hertsmere Local Development Framework

1.1 Hertsmere Borough Council (the Council) is responsible for regulating the

development and use of land or buildings across the Borough. The Council is

required to have in place a set of planning policies which form the basis of decisions

taken to grant or refuse planning permission. The Hertsmere Local Plan, adopted in

2003, contains a wide range of planning policies which presently guide the use of

land in the Borough.

1.2 Much of the preparatory work for the current Local Plan was undertaken in the

1990s and the Council is working on a new Plan to reflect local, regional and

national changes which have occurred in the intervening period. It will also need to

reflect the requirements of the Planning and Compulsory Purchase Act 2004, which

introduced major changes in the way development Plans must be prepared in

England.

1.3 The new Plan will comprise a series of related documents which together will be

known as the Hertsmere Local Development Framework (LDF).

• Development Plan Documents (DPDs) including a Core Strategy which will

set out the Council’s overall approach to new development in the Borough. Two

further DPDs are proposed: a Site Allocations document to identify specific

land for development or regeneration in Hertsmere and a Development

Control Policies document with standards and criteria against which

development proposals will be assessed.

• Supplementary Planning Documents (SPDs) will provide detailed guidance

and clarification to support policies in the DPDs. These will include SPDs on

affordable housing and planning and design.

• A Statement of Community Involvement which sets out the Council’s

procedures for involving the public in the planning process.

1.4 The Core Strategy, Site Allocations and Development Control Policies will be subject

to an Independent Examination. This will be chaired by a Planning Inspector whose

report will be binding on the Council, meaning that any required changes will have

to be included in the DPDs. Prior to the recent reforms to the planning system,

Inspectors’ reports were not binding on local authorities.

1.5 Once adopted, these three documents will be the most important consideration in

determining planning applications. The Core Strategy will be the first DPD prepared

for the LDF and will help guide the subsequent content of the Site Allocations and

Development Control Policies DPDs.

1.6 The Council has produced a ‘Local Development Scheme’ which sets out the

timetable for preparing the Hertsmere LDF. The Scheme can be viewed on the

Council website (www.hertsmere.gov.uk) and includes the following targets dates:


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1.7 Until the Core Strategy, Site Allocations and Development Control DPDs are

adopted, the Council’s existing Local Plan will continue to apply when assessing

planning applications.

2.0 Conformity with other Plans and Policies

2.1 When reading through this report, it should be borne in mind that the Council's

ability to create local policy can be limited by the need to follow guidance set by

others. This includes national Planning Policy Guidance Notes (PPGs) and more

recently Planning Policy Statements (PPSs), across a range of land use issues. The

Council will have to take these into account.

2.2 The Core Strategy will also need to be in general conformity with the East of

England Plan (the Regional Spatial Strategy or RSS), prepared by the East of England

Regional Assembly to guide development until 2021. The RSS is intended to guide

the preparation of LDF policies on housing, environmental, transport, waste and

Hertsmere Borough Council4 Issues and Options

Document Title Brief Description Date for public Proposed date(and status) participation on for adoption

DPD ‘Preferred PolicyOptions’/Draft SPD

Core Strategy (DPD) Sets out strategic objectives for the area up to 2021. Strategic July 2006 April 2008policies including confirmation of green belt boundaries andhousing allocation numbers derived from East of England Plan.Key diagram and Proposals Map will also be prepared.

Site Allocations (DPD) Provides site-specific allocations for a range of land uses such January 2007 March 2009as housing, employment, retail, leisure, community uses andurban open spaces.

Development Control A suite of generic development control policies, not otherwise September 2007 September 2009Policies (DPD) covered by other DPDs, which set out the criteria against which

planning applications will be considered, e.g. residential amenity,visual impact, nature conservation, highways issues.

Planning and Design Guidance to ensure that design policies are implemented in March/April July 2006Guide (SPD) a consistent manner in accordance with principles of good 2006

design, in line with Government guidance & advice fromother organisations.

Planning Obligations Guidance on the Council's approach to negotiating and To be determined pending outcome ofsecuring planning obligations. government’s reforms of planing

obligations

Affordable Housing (SPD) Guidance on the application of affordable housing policies in June 2006 October 2006response to the conclusions and recommendations from anew Housing Needs Survey, recent changes to Governmentguidance and practical issues regarding the delivery ofaffordable housing.

Gypsy and Traveller Site Flows from the possible development of a SW Herts Gypsy & To be determined with Herts partnersProvision in South and Traveller Strategy. The SPD will elaborate on policies orWest Herts (SPD) proposals within the Core Strategy and/or the Site Allocations

DPD.

Site Specific Development May be required at short notice to respond to unforeseen sites As required -Briefs (SPD) coming forward for development.

various other land use issues. An Examination in Public is currently in progress and

the final RSS should be adopted by the end of 2006, setting targets for new

housing and employment across the region.

2.3 The East of England is a newly created region and the RSS will ultimately replace the

Structure Plans, which are presently in use, including the Structure Plan for

Hertfordshire. Until the RSS is adopted, the Council will need to consider the

outstanding requirements of the Structure Plan when developing the LDF and

deciding whether to permit or refuse planning applications. Counties in the East of

England will continue to retain planning powers over waste and minerals planning.

2.4 The Core Strategy must be consistent with national Planning Policy Statements and

Guidance issued by the government, whilst the Site Allocations and Development

Control Policies will themselves need to conform with the Core Strategy.

3.0 Preparing the Core Strategy, Site Allocations and DevelopmentControl Policies

3.1 The Council will seek the views of the community and other stakeholders in the

preparation of all LDF documents. Although the three DPDs are scheduled for

adoption at different times, this initial report considers the Issues and Options for all

three documents.

3.2 The process for preparing the documents is as follows:

1. Consultation on Issues and Options (this report and associated public

meetings)

2. Consultation on DPD Preferred Options

3. Formal Submission of DPDs to the Secretary of State (with opportunity for

public comment)

4. Independent Public Examination on each DPD

5. Receipt of report from the Planning Inspector containing binding

requirements for any changes to the Council’s DPDs

6. Adoption of DPDs

3.3 This report represents the first stage of the process and set outs a range of options

and strategic choices. This report does not promote any particular option or

proposal but is intended to provide you with an opportunity to consider the ideas

before a preferred option is put forward.

3.4 The Core Strategy, Site Allocation and Development Control Policies - together with

all Supplementary Planning Documents - will be subject to Sustainability Appraisal.

This new aspect of the development plan system involves the assessment of policy

options against a number of sustainability objectives promoting environmental,

social and economic well-being in Hertsmere. The Sustainability Appraisal identifies

any need for mitigation or alternative approaches, where LDF policies are predicted

to have some adverse effects. A Scoping Report has already been prepared which

sets out the parameters for the Sustainability Appraisal and is available to view on

the Council’s website.

Issues and Options 5The Hertsmere Local Development Framework

4.0 What the Council has done to date

4.1 At the start of September 2005, a questionnaire was sent to every household in

Hertsmere to gauge opinion on a number of key issues. Almost 1,000 responses

were received from across the Borough and several issues were identified as

priorities by residents:

• the protection of the Green Belt

• the protection of open space in towns

• the protection of local shopping facilities

• the provision of wildlife and habitats

• the reduction of traffic congestion

• the protection of listed buildings/conservation areas

4.2 The findings revealed that protected employment land was considered the most

expendable for residential use, with almost half of all respondents stating that it

should be considered for development in the event of a shortfall of residential land.

4.3 There was an overall consensus that the level of provision of shops and other town

centre uses across the Borough was sufficient although there were considered to be

too many takeaway restaurants.

4.4 Respondents were also asked to identify, from a list of options, any additional

community or recreational facilities required in the Borough. Activities for young

people received the highest level of response, selected by almost two-thirds of

people completing the survey.

4.5 A full summary of the survey can be viewed on the Council’s website.

5.0 The Community Strategy and the Local Strategic Partnership

5.1 Hertsmere Together, the Hertsmere Community Strategy was published in 2003 and

sets out the community’s vision for the whole Borough. It was prepared by the Local

Strategic Partnership, which brings together representatives of the public, business,

education, healthcare and community sectors. The Community Strategy was

developed to provide an impetus for improving and co-ordinating service provision

in the Borough, both now and in the longer term.

5.2 The overarching aim of the Community Strategy is to promote or improve the

economic, social and environmental well-being of the Borough through a series of

aims and objectives. A principal role of the LDF is to help deliver the land use or

spatial requirements of the Community Strategy, to enable local service providers to

operate effectively in Hertsmere.

5.3 The LDF and the Community Strategy are, therefore, at the centre of local service

delivery and need to be regularly updated to make them relevant for the users and

recipients of local services. It will be necessary to relate proposed changes to the

Community Strategy in 2006 with the emerging policies in the LDF. Clearly, it is

important that the Council properly involves the various representative groups and

forums who inform the work of the Local Strategic Partnership.


6.0 Policy objectives for the LDF

6.1 The qualities which make Hertsmere an attractive area in which to work and live

need to be protected but positive, pro-active planning is also required to facilitate

development which reflects the needs of the wider community. The Council would

welcome your views on the proposed guiding vision for the Hertsmere LDF:

‘The delivery of a high quality, inclusive and viable environment to be

achieved through a commitment to the principles of sustainable

development.’

6.2 The objectives for LDF policy documents, particularly the Core Strategy, need to be

entirely consistent with the Community Strategy. Although the actual policies in the

LDF will not be finalised this year, the Council would like to agree broader objectives

for the LDF from the outset. We would welcome your views on the proposed

objectives:

1. To protect the Green Belt whilst promoting rural diversification and

sustainable access to the wider countryside wherever possible.

2. To maintain an adequate supply of suitable land, concentrated on

brownfield sites within towns, to accommodate expected development

needs and supporting community infrastructure.

3. To provide the spatial policies necessary to deliver the Community

Strategy.

4. To secure efficient land use through well-designed development

reflecting the size, pattern and character of settlements in Hertsmere.

5. To protect and enhance the built heritage of Hertsmere.

6. To raise levels of access by seeking development in locations not

dependent on access by car and by requiring the provision of accessible

buildings.

7. To assist where possible the community’s need for affordable housing.

8. To promote safe, healthy and inclusive communities, respecting the

diverse needs of the whole Borough.

9. To provide a planning framework which promotes sustainable and

competitive economic performance, supporting businesses of all sizes

and reflecting local skills.

10. To safeguard and enhance the role of town and district centres in

Hertsmere, steering commercial developments which attract a large

number of people towards the most widely accessible centres.

11. To protect and enhance local biodiversity within both developed and

undeveloped areas.

The Hertsmere Local Development Framework Issues and Options 7

12. To protect and promote the environment in Hertsmere by addressing

local causes and impacts of pollution.

13. To address issues arising from climate change and flooding and to take

advantage of water and other natural resources responsibly.

6.3 The objectives of the Core Strategy extend to the Site Allocations and Development

Control Policies DPDs although four additional objectives have been identified for

the Site Allocations:

1. The promotion and identification of land and buildings to help ensure

the timely delivery of development to meet the Borough’s needs.

2. To work with key partners to identify pressure areas and subsequent

requirements for healthcare, education and other community facilities

and identify single use and mixed use sites to accommodate these

requirements.

3. To work with key partners to identify specific s106 funding opportunities

on identified sites for development.

4. To set the parameters for future development proposals within

identified Major Developed Sites in the Green Belt.

7.0 National and regional planning policy

Government policy: the national context

Housing

7.1 The Government has argued that increasing overall land supply remains the only

way of delivering more affordable homes in the long term. A key government study,

the Barker Review of Housing Supply, recently identified a need for up to 140,000

extra new homes a year across Britain if housing supply is to match demand. The

report identified a lack of developable land as a major cause of high house prices

and concluded that between 70,000 and 120,000 additional private sector homes

are required each year, together with up to 23,000 social housing units. By 2026, it

is estimated that only a third of couples in their thirties will be able to afford to buy

a home in England.

7.2 The Government has published a range of proposals to address housing and

affordable housing shortfalls:

- A proposed reduction in the size of privately developed sites on which a proportion

of affordable housing must be provided, from 25 units to 15 units.

- Assessing local household need and land requirements based on housing market

areas.


- Allocating a ‘rolling’ 5 year supply of housing sites and identifying land for a

further 10 years.

- Topping up the 5 year site-specific allocations, with land from the 10 year supply as

appropriate.

7.3 In recent years, the Government has encouraged local authorities to approve new

housing at higher densities, particularly in more central locations. Most new

housebuilding should achieve densities of 30 to 50 homes per hectare (12 - 20

homes per acre) with greater levels in places with good public transport accessibility.

7.4 The East of England Regional Plan (RSS14) is seeking 4,200 dwellings in Hertsmere

between 2001 and 2021 out of a regional total of 478,000 new homes. The current

Examination may even lead to an increase in the 4,200 figure - either through the

findings of the examination findings or through subsequent government

intervention. If this occurs, there may be pressure to develop some Green Belt sites if

there is insufficient brownfield land to meet increased housebuilding requirements.

7.5 The Plan also seeks that 30% of overall housing supply in a local authority should be

in the form of affordable housing - with an overall aspiration to secure at least 40%

in areas of particular housing pressure. The majority of the new affordable housing

supply should be provided in the form of social rented housing, rather than key

worker or intermediate housing.

Building Sustainable Communities

7.6 The Government has sought to place the building of sustainability communities at

the heart of its planning policies. Planning Policy Statement 1 (PPS1) Delivering

Sustainable Development emphasises that:

“sustainable development is the core principle underpinning planning”.

(PPS1, paragraph 3)

7.7 This is to be achieved through good, inclusive design and the creation of ‘safe,

sustainable, liveable and mixed communities’ with good access to jobs and key

services. There is greater recognition by government of the need to achieve high

quality design and design which fails to improve the character and quality of an area

should no longer be accepted.

7.8 The emerging East of England Plan recommends a ‘sequential approach’ to locating

new developments - with the intensification and use of land near to public transport

routes and other facilities preferred ahead of more remote locations. The Plan

proposes a hierarchy of settlements based on accessibility:

• Urban Regional Interchange

• Other Urban Centres

• ‘Peri-urban’ areas

• Market Towns

• Rural Areas


7.9 Parts of central Borehamwood and Potters Bar could be described as an urban

centre, in terms of accessibility to public transport although most of the

Borehamwood, Potters Bar, Bushey and Radlett could be best described as ‘peri-

urban’. The remainder of the Borough has very limited accessibility to both public

transport and other services and would need to be defined as rural in terms of its

accessibility.

Open Land and the Environment

7.10 It is twenty years since the Bruntland Commission first defined sustainable

development as:

“development that meets the needs of the present without compromising the ability

of future generations to meet their own needs”. The planning system has long been

concerned with the protection of the environment but overarching national policy

has only recently incorporated the principle of sustainable development as one of its

key tenets.

7.11 PPS1 requires LDF policies to take account of environmental issues such as greater

use of renewable energy, air quality and pollution and flood risk. It is recognised that

there are clearly local issues arising from the siting and location of the infrastructure

to achieve these objectives.

7.12 Policy guidance also emphasises the role of the planning system in improving air

quality. Many development proposals must now include an Air Quality Impact

Assessment and all local authorities in England and Wales have reviewed and

assessed air quality since 1995 in line with national air quality objectives. Where

pollution levels exceed national targets, an Air Quality Management Area (AQMA)

must be created with an individual Action Plan for each site. There are presently six

AQMAs in the Borough.

7.13 Green Belt policy, set out in PPG2, continues to identify five principal reasons for the

inclusion of land within the Green Belt:

1. to check the unrestricted sprawl of large built-up areas

2. to prevent neighbouring towns from merging into one another

3. to assist in safeguarding the countryside from encroachment

4. to preserve the setting and special character of historic towns

5. to assist in urban regeneration, by encouraging the recycling of derelict and

other urban land.

7.14 No areas of Green Belt review are proposed in and around the Borough in the East

of England Plan. However, regional policies seek the protection of local landscape

character and specifically identify Watling Chase for the provision of new woodland.

7.15 LDFs are required to include policies which address energy consumption on larger

developments – with a requirement that at least 10% of their energy requirements

are met on site. LDFs should ‘specify the locational and other criteria by which

applications for renewable energy developments will be assessed’. There is no


presumption against their location in the Green Belt although larger groups of wind

turbines should only be located in non-designated landscape areas, where there is

minimal effect on nearby homes.

Employment

7.16 Government policy on the provision of land for employment has evolved in recent

years, in response to the increased pressure for land for new housing. Whilst

supportive of new jobs in the right location, recent government policy in PPG3

emphasises that unless brownfield land is absolutely needed for other uses, it should

re-used for housing.

7.17 PPG3 places an emphasis on Councils to have an up-to-date assessment of

employment land needs so that genuinely surplus land can be released to meet the

housing targets for new homes. Clearly, a balance will need to be struck to ensure

that there are sufficient employment opportunities for the local community. The loss

of viable employment land would result in an increased proportion of the local

population having to commute further afield to secure employment.

7.18 The East of England Plan envisages additional employment growth in Hertfordshire,

as well as in the Cambridge sub-region and parts of Essex over the period until

2021. The Plan sets a job growth target for Hertfordshire of 55,800 new jobs and

emphasises the importance of promoting a range of sites to meet employment and

investment opportunities - particularly in areas of high economic pressure. It is

unlikely to be acceptable to release large amounts of employment land for housing,

if the Borough is to contribute to the County-wide jobs target.

Transport and parking

7.19 The Government has emphasised the importance of planning in shaping transport

trends by influencing where new development is located and by managing parking

demand. Reducing the need to travel is a key tenet of government policy.

7.20 Major trip-generating developments must now be located in more central locations

so they can be accessed by public transport and other non-car modes. The

availability of car parking is also a key influence on the preferred method of travel

and government policy in PPG13 advises that local authorities should set a cap on

the level of parking provision at new development.

7.21 Reducing the need to travel and increasing travel choice and accessibility are a

central theme in the East of England Plan. The principle of road user charging is

supported whilst it is proposed that off-street parking for new developments is

restricted to no more than 70% of national maximum standards for a number of

key land uses.

7.22 At the same time, Hertfordshire County Council is currently consulting on a new

Local Transport Plan (LTP) which will cover the five years from March 2006. The LTP

contains a number of objectives which the planning system can help to deliver for


managing traffic growth, improving safety and encouraging the use of sustainable

modes of transport.

Shopping and Town Centres

7.23 The Government issued new national retail planning policy in June 2005

emphasising the need for a ‘hierarchy’ of town centres so that growth can be

targeted in the right location. It also aims to ensure that shopping floorspace is

concentrated in existing town centres unless no suitable sites exist. The need for

large amounts of additional floorspace must also be demonstrated by retailers.

7.24 Town centres are promoted as the focus for a range of other uses, including the

promotion of a balanced evening economy. They are therefore considered to be the

most appropriate location for a range of leisure, cultural and tourism activities

including cinemas, theatres, restaurants, public houses, bars, nightclubs and cafes.

7.25 The East of England Plan (RSS14) largely reflects the national guidance in PPS6. The

Plan sets out a ‘regional hierarchy’ of town centres and new retail development

must be consistent in scale with the size and character of the town centre and its

role in hierarchy. This is to ensure that the larger centres can continue to offer a

wide range of shopping without having trade diverted towards smaller or more

remote town centres, which should instead focus on local and convenience goods.

7.26 None of the town centres in the Borough are defined as a major regional centre or

regional centre. This may have the effect of preventing any substantial levels of new

retail development in Borehamwood or any of the Borough’s other larger centres,

should proposals come - unless a need for the development is clearly justified.


Centennial Park, Elstree

New housing in Shenley

8.0 The Key Issues for Hertsmere

8.1 Despite its immediate proximity to London, open land and Green Belt countryside

account for much of the Borough. Protection of the environment is likely to remain

a key priority for many people living in Hertsmere and across the South East.

8.2 The Borough’s links to nationally important roads and railway lines provide

opportunities for many local residents to find work outside Hertsmere. These

transport links also make much of the Borough accessible as an employment

destination for local and national businesses - the international reputation for film

and television production at Elstree is a defining characteristic of the Borough.

Attracting and retaining businesses in the Borough is key to ensuring our towns

remain sustainable communities in their own right.

8.3 The local population is predicted to grow steadily together with an increasing

number of new households. However, the average age of residents is increasing and

there is a risk that younger people, unable to afford to rent or buy housing, will

choose to leave. The high cost of housing remains one of the key issues affecting

the whole Borough and whilst the local population appears to enjoy relatively high

levels of disposable income, this is offset by the lack of genuinely affordable

housing. There are also significant pockets of social deprivation and planning policies

for the Borough will need to consider the needs of the entire community.

8.4 This report sets out the key issues likely to affect the Borough over the next fifteen

years and proposes a series of options to address them. The Council would like to

hear from you and would welcome your views on the options proposed. The

Council would also like to know whether there are any sites or areas which you

would wish to see promoted or protected from development. After reading the

following sections, please take the time to complete the response pages. The

Council will also be holding a series of workshops across the Borough where there

will be an opportunity to discuss the issues raised in this report and influence the

development of preferred policy options for the Borough.


The

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Key Hertsmere facts

- 80% of the Borough’s 38 square miles is Green Belt

- The overall population of 94,000 is expected to grow by 10% over the next twenty years

- The retired population is projected to increase by a quarter by 2021

- The number of people aged between 25 and 44 is expected to decline by 2021

- Life expectancy for males is currently 78 and females 81

- More than 45,000 individuals are employed within Hertsmere

- Major employers include BBC TV Elstree, Canada Life Assurance Co, Cancer UK, Pinnacle

Insurance and Grunwick Processing Laboratories

- More people commute out of Hertsmere for work (27,000) than commute into the

Borough (25,000)

- Hertsmere is amongst the 25% least deprived local authority areas in England.

- Teenage Pregnancy at 34 per 1000 of the population is above the Hertfordshire average of

30 per 1000. The national average is 42 per 1000.

- The increase in the crime rate for Household Burglary and Vehicle Crime in 2003 was

above the average rate for the East of England.

- The number of households with two or more cars (41%) is considerably higher than the

national average (29%)


9.0 Housing

9.1 One of the overriding planning objectives for national policy remains the protection

of the Green Belt. The Council has been successful in recent years in directing

housing development onto previously developed land - commonly known as

brownfield sites. This has prevented urban sprawl and the erosion of the Green Belt.

9.2 Since 1991, housebuilding rates in Hertsmere have averaged approximately 260

homes per year. The Council remains optimistic that new housing demand can be

largely directed to brownfield sites, with the majority of available land in Hertsmere

likely to be found in Borehamwood and to a lesser extent, in Potters Bar, Bushey and

Radlett. Some previously developed sites are likely to be found elsewhere although

there is a need to distinguish between any vacant brownfield sites in the Green Belt

and greenfield land which has never previously been developed.

9.3 Whilst the protection of the Green Belt remains a successful and popular planning

policy, its restriction on the availability of housing land does have important

repercussions. Almost 80% of the land in the Borough is Green Belt meaning there

is a limited amount of easily developable land despite the pressure for new housing.

The Green Belt has the effect of:

• Restricting urban sprawl

• Preventing neighbouring towns from merging into each other

• Protecting the character and identity of existing towns and villages

as well as:

• reducing the area where new housing can be provided;

• affecting the supply of housing land and so the price of existing and new

housing; and

• leading to a reliance on small, private sites for development, which are too small

to be required to provide a proportion of affordable housing.

9.4 For these reasons, the Council faces major problems in meeting any of its growing

local housing needs shortfall; a consultant’s report for the Council (Housing Needs

Survey 2005) has suggested a shortfall of 351 homes per year. Only 50 new

affordable homes are built each year in the Borough.

9.5 The promotion and identification of land and buildings suitable for residential

development is a key LDF requirement. The Council is presently undertaking an

Urban Capacity Study to identify the availability of developable brownfield land

across Hertsmere. Identified sites will need to provide homes across a number of

tenures, ensuring that both private and affordable housing - including intermediate

and key worker homes - are provided.

The Key Issues for Hertsmere Issues and Options 17

Key Housing Statistics in Hertsmere

General

Total Population 94,000

Number of homes in the Borough 34,000

Projected population changes 2003 - 2021 9,200 More People

1,200 More People Aged 0 - 19 (+ 5%) (national - 4%)

1,500 More People Aged 20 - 29 (+ 14%) (national + 8%)

1,000 Less People Aged 30 - 44 (- 5%) (national - 7%)

3,800 More People Aged 45 - 64 (+ 17%) (national + 18%)

3,700 More People Aged 65+ (+ 24%) (national + 34%)

Affordability

Average price of a flat (2005) £179,000 (national average £151,000)

Average price of a terraced house (2005) £229,000 (national average £175,000)

Percentage of stock in the Social sector 18.4% (national average 19.3%)

Estimated annual requirement for affordable units 766 units

Estimated annual number of social rented relets 415 units

Estimated number of required units exceeding new affordable supply 351 units

Unfit homes

Number of unfit homes per 1,000 dwellings 40 (national 42)

Suitability

% of households living in accommodation suitable for their needs 89%

Densities

Average new housebuilding densities on large sites in 61.4 homes per hectare (Government target of at least

Borehamwood, Bushey and Potters Bar in 2004/5 30-50 homes per hectare)

Green Belt Safeguarded Sites

Number of safeguarded housing sites in the Green Belt 6

Total estimated capacity for these sites 364

Use of Brownfield Land

% of new housebuilding on previously developed land (2004/5) 100% (National %: 70%)

(Government target 60%)

Gypsy and traveller accommodation

Number of existing sites 4

Total number of current pitches 42 (27 permanent, 15 short stay)

Shortage of pitches 80 - 110 pitches across five local authority areas in

SW Hertfordshire including Hertsmere


Key data sources: Consultants Housing Needs Survey 2005, Hertsmere Land Availability Statement 2003/4, Hertsmere Local Plan 2003, South and WestHertfordshire Gypsy and Traveller Survey 2004, Land Registry, Government Actuaries Department

Issues affecting Hertsmere to 2021

9.6 The Council’s recent LDF householder survey provided a number of important

insights into concerns and attitudes across the Borough:

• The provision of affordable housing was only a medium priority;

• The provision of housing on brownfield land in existing towns ranked as a

below medium priority;

• There was stronger support for the provision of more one and two bedroom

properties; and

• Providing sites for gypsies and travellers was the lowest priority for the public of

all planning issues raised

9.7 Although the survey generally revealed housing to be a relatively low priority issue,

housing need does exist in the Borough and the Council’s Housing Needs Survey

revealed that 93% of concealed households - those within a household wanting to

move out and form a separate household - cannot afford to buy their own property

and 75% cannot afford to rent the cheapest available private housing.

9.8 Whilst affordability can be a relative concept - what is affordable to some is not to

others - the LDF will have to include appropriate policies for the provision of

affordable housing. Current planning policies for Hertsmere define affordable

housing as housing for sale, rent or equity sharing with an element of subsidy.

Affordable housing on sites developed for private housing

9.9 The LDF will need to ensure the community’s need for affordable housing is met by

providing such units through the planning system where possible. Current policies

seek 25% of units in the form of affordable housing on privately developed

schemes of more than 25 units or one hectare. A lack of large housing sites in the

Borough means there is a need to consider the size of scheme where a proportion

of affordable housing will be sought as few schemes of more than 25 homes are

presently built in the Borough.

9.10 The actual proportion of new housing delivered with subsidy will also need to be

reviewed in the LDF. On the basis of a projected annual shortfall of 351 units, the

consultant’s Housing Needs Survey recommended that 40% of new units be

developed as affordable housing. Two-thirds of the units of these should be social

rented housing with one-third as intermediate housing, including key worker and

shared ownership homes. Despite the evidence of demand for key worker and

shared ownership, there have been some difficulties in attracting individuals and

families to these properties. In addition, the Council recognises that the planning

system alone cannot deliver the annual shortfall of 351 units and it is unrealistic to

expect that this entire deficit will be overcome, given the limited supply of

developable land in the Borough.


Rural exception policies

9.11 It may be appropriate to retain or extend the existing ‘rural exceptions’ policy where

affordable housing can be provided on sites which would not normally be

appropriate for market housing - as an 'exception' to normal planning policies. This

policy presently applies to land in Aldenham, Shenley, South Mimms and Elstree for

small scale, affordable housing schemes. The current approach is consistent with

Government policy in PPG3 which acknowledges the role of rural exceptions sites in

delivering affordable homes for identified local need.

9.12 The inclusion of private homes to subsidise an exceptions scheme would not be

appropriate. Safeguards are required to ensure that any new houses meet local

needs, are built in the most appropriate locations and are genuinely affordable in

perpetuity.

9.13 Rural exceptions schemes are often community led and best delivered through an

effective partnership between the local community, landowners and the Council.

The use of a rural exceptions policy in Hertsmere - with the possible identification of

sites in the LDF - has the potential to form a small but important component of

affordable housing need in the Borough.

Other Housing Needs

9.14 In addition to a need for more affordable housing and increased overall housing

supply, the Housing Needs Survey identified a number of particular housing needs in

the Borough:

• A mix of house types in market and social sectors with more flats and

terraced houses to meet the needs for smaller units;

• More ‘extra care’ or sheltered accommodation for the growing elderly

population; and

• Housing for the mobility impaired

9.15 Where the principle of new housing is permitted by the Council, it may be

appropriate to require housing developments to reflect these needs. Current policies

already seek to achieve a proportion of homes for smaller households, including

those suitable for occupation for the elderly and a proportion of housing built to

‘lifetime homes’ standards which can subsequently be adapted for use by

wheelchair users and others with mobility impairments. The Borough needs a range

of properties of different sizes and tenure to provide homes for people at all stages

of life.

9.16 Many new homes in England are required to be built to lifetime homes standards

and extending the scope of the current policy may be appropriate in Hertsmere. This

may enable frail or elderly people to remain at home or with other family members,

without the need to move into residential care homes. Nevertheless, it is recognised

that sheltered accommodation and care homes are both likely to play an important

role in meeting the housing needs of older people in the borough with the retired


population expected to increase by 24% by 2021. Many of these people may

presently live outside of the Borough and there is a risk that Hertsmere could attract

some elderly people with no local connections.

Gypsies and Travellers

9.17 Although there is presently no legal obligation on local authorities to provide

caravan sites for Gypsies and Travellers, the Government has published proposals

which would require their needs to be assessed and if necessary, sites or additional

capacity provided.

9.18 The Borough presently has four authorised sites for the Gypsy and Traveller

communities with up to 42 pitches. However, across Hertfordshire and neighbouring

counties, there are concerns that an insufficient number of sites has led to an

increase in unauthorised encampments, particularly in the Green Belt.

9.19 A group of five Local Authorities across south and west Hertfordshire, including

Hertsmere, have undertaken an assessment of Gypsy and Traveller needs across the

area. The study sought to establish the extent of need for additional sites and

concluded there is a need for 90 additional plots on local authority and private

residential sites across the study area. Household growth from existing families

would require a further 35 plots.

9.20 It will now be necessary to establish whether there is scope to provide additional

sites or extend existing sites across the five Local Authority areas, having regard to

the level of site provision already achieved in each location. A balance has to be

found between the legitimate needs of the Gypsy and Traveller community and the

need for any new sites to be fairly distributed in suitable locations. Consultants have

been jointly appointed by the local authorities involved to come forward with a

suggested list of suitable sites.

10.0 Building Sustainable Communities

10.1 Successful communities are about more than the provision of new housing.

Additional housing growth can only be achieved by considering education and

healthcare needs together with access to shops, public transport and other local

services. Existing shortfalls in services have to be identified before large amounts of

new housing can be successfully accommodated. It also needs to be recognised that

some patterns of development in the Borough are not particularly sustainable and

there may be locations where this cannot change in the short term.

10.2 The LDF has a key role to play in the provision and safeguarding of community

facilities, including schools, libraries, places of worship and healthcare facilities. The

need for new facilities can have major land requirements and many providers of

community facilities such as the Hertsmere Primary Care Trust, Oaklands College and

the University of Hertfordshire are undergoing changes in the way they deliver their

services. In some instances, this will include the redevelopment of existing buildings

or the consolidation of facilities together onto a single site. At the same time, links


between schools and other community facilities may need to be improved, given

Government requirements for schools to provide a range of services and activities,

often beyond the school day, to meet needs of pupils and the wider community.

These all raise land-use planning issues.

10.3 The ability of existing areas to physically absorb any increase in development also

needs to be assessed. The Borough’s built environment is mainly suburban in

character and is predominantly contained within the urban areas of Borehamwood,

Potters Bar and Bushey and the smaller settlement of Radlett. Parts of Shenley and

the smaller villages of Elstree, Aldenham, Ridge and Roundbush are more rural in

nature and add their own distinctive character to the Borough. Building sustainable

communities requires a proper understanding of the capacity of the Borough to

accommodate change. Hertsmere does not have a uniform character and the

identification of an appropriate hierarchy of settlements can provide the potential

for differences in the scale and density of new development to be identified.

Issues Affecting Hertsmere to 2021

The scale and density of new development

10.4 Making efficient use of land for commercial and residential developments has a

major role to play in reducing the pressure on developing the Green Belt and other

undeveloped land. Higher density developments can provide a more sustainable

pattern of land use but there need to be adequate safeguards to ensure that new

proposals reflect the character of the area in which they are located.

10.5 Numerical measurements of density and plot ratio (the relationship between site

area and the number of floors/floor area) can offer a useful initial means of

assessing the suitability of residential and commercial proposals respectively.

Although the Council will need to have proper regard to the government’s density

guidelines, a range of other factors will also need to be considered to ensure that

local character and circumstance are properly considered. It follows that there are

some locations within the Borough where higher density residential and commercial

developments may be more appropriate, such as those in or near to the principal

town centres of Borehamwood and Potters Bar. Outside of Borehamwood and

Potters Bar town centres, there are unlikely to be too many locations where

significant increases in density and plot ratio could occur without adversely affecting

local character and amenity.

10.6 Whilst the design merits of new development might be regarded as a subjective

interpretation, key urban design principles can be introduced for all new

development - regardless of density. The Council is hoping to introduce new design

guidelines for developers in 2006 although more specific policies on density will

need to be addressed through the LDF Core Strategy and Development Control

policies DPDs.


Community facilities and mixed use development

10.7 Sustainable communities are those in which people have access to a range of

community facilities such as schools, libraries, doctors and crèches without needing

to travel long distances or rely on the car. New developments can increase the

population of an area and therefore put additional pressure on existing facilities -

although it should be emphasised that some new housing will accommodate those

already living within an area.

10.8 Locating developments that contain a mix of uses which complement each other,

such as housing, healthcare or leisure facilities, in close proximity can contribute to

achieving sustainable communities. Many areas in Hertsmere are largely ‘single use’

locations with large areas characterised by housing and relatively few local facilities -

leading to greater dependency on the car and a reduced level of choice for those

without access to private transport. The introduction of planning policies which

require a mix of uses to be provided, particularly on larger housing developments,

can have a major bearing on the creation of more sustainable and attractive local

communities. Elsewhere there may be some justification for a relaxation of existing

controls which limit the ability of residential properties to be converted into local

community facilities, such as crèches or surgeries.

10.9 On sites where it is not realistic to achieve a mix of uses, the provision of financial

contributions from developers can be sought to fund facilities elsewhere. This is

already done in some instances but it may now be appropriate to introduce a tariff

on all new development sites to avoid the uncertainty and delays caused by

negotiations on new sites. The tariff would need to relate to the size of site or scale

of development proposed and would reflect the impact on local infrastructure and

services generated by a scheme. Safeguards would need to be introduced to ensure

that the revenue raised by any tariff is spent on the provision of local services or

infrastructure upgrading, relating to the development.

Safe and vibrant communities

10.10 Planning and designing out crime from the outset can ensure that the scope for

inhospitable and unsafe environments is avoided before it becomes a problem to be

tackled. Mixed use developments that encourage activity throughout the day and

into the night can also encourage natural security by preventing areas becoming

unused and unwelcome.

10.11 A reduction in crime and the fear of crime in Hertsmere remains a key objective for

the Council and the LDF has an important role to play by requiring that changes in

the built environment improve safety and security.


11.0 Open space and the environment

11.1 The protection of the Green Belt has prevented the outwards expansion of Greater

London, protecting the separate character of the Borough’s towns and villages by

ensuring that they have not merged into each other. Outside of Borehamwood and

Elstree, Potters Bar, Bushey and Radlett, the potential for any new development has

been severely restricted. Where it is permitted, the size and scale of new buildings or

uses is restricted to:

• Buildings and uses required for open land activities such as agriculture,

recreation, cemeteries and minerals extraction

• Limited infilling of existing villages

• Limited infilling of designated ‘major developed sites’

11.2 Many major developed sites in Hertsmere were developed before the Green Belt

came into existence and are predominantly education, research and healthcare

facilities. Some limited infilling and extensions of buildings on these sites has been

allowed over the years to enable essential upgrading of facilities in these locations.

In addition, some re-use of redundant farm buildings for non-agricultural purposes

has been permitted.

11.3 The current Local Plan safeguards a small number of sites for future housing

development after 2011 if insufficient land from within the urban area is available to

meet longer term housing needs. In the interim period, these areas remain subject

to usual Green Belt planning controls. A key part of the LDF will be to review the

need for this safeguarded land, by identifying the extent and capacity of available

urban and brownfield land for future development. The safeguarding of land was

recommended following two Public Local Inquiries into the Hertsmere Local Plan.

11.4 Open land within the Green Belt does not have a single character or use.

Agricultural and recreational uses account for a large proportion of Green Belt land

but within these locations, the diversity of landscape and wildlife is considerable.

There are various Local Nature Reserves and Sites of Special Scientific Interest

together with historic parks such as Wrotham Park and Wall Hall and the battlefield

site at Kitts End. The Borough is also located entirely within the Watling Chase

Community Forest, one of twelve community forests across the country. It contains

wildlife habitats, providing an attractive location for the public to enjoy. It also

contributes to rural employment and reduces atmospheric pollution by absorbing

pollutant gases.

11.5 Within the main towns, there are also a number of important areas of open land. A

hierarchy of parks, playing fields, playgrounds and allotments, much of which is

currently protected through existing planning policies, contribute to the quality of

life of everyone. Although there are considered to be few areas with insufficient

access to open space and outdoor recreational facilities, pockets of deficiency are

likely to exist. The poor quality of some open space and supporting facilities may

also mean the level of actual use may be limited in some locations.


Environmental facts about the BoroughTOPIC AND INDICATOR HERTSMERE AMOUNT

Green BeltTotal area of land in the Borough that is Green Belt Just over 30 square miles

Percentage of land on the Borough that is Green Belt 79.6

No. of ‘’major development sites’ in the Green Belt 15

No. of safeguarded sites in the Green Belt 6 (Haydon Dell Farm, Bushey; land east of Farm Way, Bushey;Land bounded by Heathbourne Road, Windmill Lane and ClayLane, Bushey; 16 Watford Road Radlett; Byron/Vale Avenue,Borehamwood; West Herts College Annexe, William Street,Bushey)

Change in Green Belt area 1997 - 2003 -20 hectares

AllotmentsNo. of allotment gardens in the district 5

Area of the district covered by allotments 10.6 hectares

Public ParksNo. of Public Parks in the Borough 43

Percentage of Hertsmere residents who use public parks 74%

% Hertsmere residents who used public parks about once a month 32%

% Hertsmere residents who used public parks at least once a week 45%

Total Size of the Public Parks 124 hectares

Other Outdoor SpacesPercentage of Hertsmere residents who use outdoor spaces which 67%are not public parks (e.g. for walking)

% Hertsmere residents who used outdoor spaces about once a month 30%

% Hertsmere residents who used outdoor spaces at least once a week 48%

Air QualityNo. of air quality management areas 6

Days of the year when air pollution is moderate or higher 36 (Herts average 27)(in accordance with National Air Quality Standards)

Wildlife and other Nature Conservation SitesTotal Number and Area of Sites 124 sites (940 hectares)

No. of Sites of Special Scientific Interest 2 (Radwell Wood (an ancient woodland) and the former quarrysite near South Mimms Castle (geological formation)

No. of Local Nature Reserves 3 (Furzefield Wood (Potters Bar), Fisher’s Field (Bushey) andHilfield Park Reservoir)

No. of regionally important geological and geomorphological sites 3

Conservation and Historic AreasNo. of Conservation Areas 15

No. of battlefields 1 (land near Kitts End was part of the Battle of Barnet)

No. of buildings of special historic or architectural interest in Hertsmere 336

Number of historic parks 3 (Wrotham Hall, Wall Hall and Aldenham Park)

Rights of WayLength of Rights of Way 95 miles

Community ForestArea of the Borough covered by Watling Chase Community Forest 99.2% (10,000 Hectares out of a total Borough area of 10,080

Hectares)


Principal Sources: Office of Deputy Prime Minister, Hertsmere Leisure and Cultural Strategy, MORI representative panel of Hertsmere residents, HertsmereLocal Plan

Issues affecting Hertsmere to 2021

The Green Belt

11.6 Protection of the Green Belt was the highest ranking priority for the people in the

recent LDF householder consultation which attracted around 1,000 responses.

Nevertheless, Green Belt land in the Borough has long been subject to a process of

managed change: for example, major sports facilities, research and educational

establishments have all been carefully developed or modernised in the Green Belt.

Mineral extraction also takes place in Green Belt countryside.

11.7 The Green Belt boundary in the Borough was reviewed and updated in the

preparation of the 2003 Local Plan and currently the Council does not propose any

major changes to Green Belt boundaries. The need for minor boundary changes will

need to be addressed where there are anomalies or inaccuracies in the precise

designation of a Green Belt boundary.

11.8 It is realistic to acknowledge that there are three major pressures for change in

Green Belt land in the Borough:

1. Accommodating housing need. The Council’s urban capacity study will help

establish if there are sufficient development sites within urban areas. If there are

not, it may be that currently safeguarded sites or new sites in the Green Belt will

have to be considered for development.

2. Leisure needs and public access. This creates a demand for sporting clubs and

facilities, as well as informal leisure and recreation opportunities, for both

Londoners and Hertfordshire residents. A number of the most popular

recreational and open land facilities are located in the Green Belt.

3. Redundant farm buildings. The changing nature of agriculture has increased the

number of these buildings. New uses can represent a sustainable and practical

use of land and enable farms to successfully diversify, in line with government

objectives. However, highly commercial and trip-generating activities can lead to

major changes in the way rural land is used, which may not always be in

keeping with the surrounding area. Presently, there is a preference to secure

non-residential use of redundant agricultural buildings. There is, however,

relatively little specific guidance over the type and intensity of non-residential

uses considered acceptable.

Open Space and Parks

11.9 The role of the planning system to “fill the gaps” in provision will need to continue

as part of the Local Development Framework process through an open space and

recreation study. Two parks in the Borough have received ‘Green Flag’ status - King

George Recreation Ground, Bushey and Oakmere Park, Potters Bar - but new

deficiencies in both the quantity and quality of public open space and parks will

need to be identified.


11.10 Some choices will have to be made about the extent to which recreational and

leisure access to the Green Belt should be accommodated. Four ‘Gateway’ sites to

Watling Chase Community Forest already exist in the Borough: Aldenham Country

Park, Bowmansgreen Open Farm (now known as The Willows), Shenley Park and

South Mimms Service Area. The provision of facilities at these sites has the potential

of drawing more people to other facilities nearby, many of which are popular with

the wider community.

Cemeteries

11.11 Current policies in the Local Plan suggest that burial sites are best located in the

Green Belt, albeit where the overall openness of the Green Belt is preserved. This

can depend on the layout of graves and buildings and their relationship with the

local landscape. The need to provide additional burial space may arise over the next

fifteen years and the LDF will need to ensure that the needs of all faith communities

in the Borough are properly addressed should the policy need to be reviewed.

Allotments

11.12 Recent surveys by the Council of allotment provision revealed that Borehamwood is

the only town with a significant deficiency. However, it should not be inferred that

the Borough is over provided with allotments. The redevelopment of allotments in

urban areas is currently prevented unless it can be shown there is adequate

provision elsewhere and the replacement proposals makes an essential contribution

to leisure or recreational needs.

11.13 Allotments have a valuable role particularly as more flatted developments are built

and the number of elderly or retired people continues to grow. Nevertheless, there

are others who perceive allotments as expendable if further development land is

required in the Borough. 23% of respondents in the recent household survey

considered that allotments should be redeveloped, in the event of a shortfall of

available land for housing.

Wildlife Areas

11.14 There are presently a large number of designated wildlife and other nature

conservation sites which includes:

• Sites of high importance that have been identified under the Wildlife and

Countryside Act 1981 (Sites of Special Scientific Interest)

• Sites with a more localised importance (Local Nature Reserves and Sites of

Importance for Nature Conservation

• A large number of trees covered by Tree Preservation Orders

11.15 Policies presently exist which recognise the importance of maintaining hedgerows,

watercourses, river corridors, flood plains and watermeadows. The protection and

promotion of biodiversity remains a key objective of the Council and consideration

needs to be given to whether existing policies afford adequate protection to flora

and fauna within the Borough.


Renewable Energy

11.16 Given the possibility of proposals coming forward for a variety of energy source

developments - including wind turbines or windfarms - there may a need to provide

greater clarity in terms of those locations where proposals may not be considered

acceptable. The outright prevention of any wind turbine or other renewable energy

development is likely to be resisted by central Government. Within Hertsmere, small

and domestic scale renewable energy production is likely to increase and the LDF

will need to contain appropriate policies to reflect this. At the same time, there need

to be steps taken to reducing energy consumption through energy efficient building

design; further guidance is expected to be issued through Hertfordshire County

Council’s sustainability guidelines.

Development and floodrisk

11.17 One of the challenges facing planning authorities as a result of climate change is the

increased threat of flooding caused by seasonal rain or through sudden and

increasingly violent storms. A range of measures would help in preventing such

incidents taking place locally:

• Avoiding any significant development in the floodplain

• Avoiding developments which creates significant areas of impervious

hardstanding in river catchment areas which can in turn can lead to flash

flooding

• Investigating new reservoir provision

• Encouraging the introduction of ‘sustainable drainage systems’ (SUDS) to reduce

the amount of water needed and soakaways for new development

Water use

11.18 The Borough is located within the driest region in the country and the effects of

climate change are likely to further reduce supply and increase demand. Buildings

are major water consumers and design needs to incorporate measures to avoid

water wastage. The right choice of specifications within new buildings can greatly

reduce water consumption throughout the life of a development together with use

of underlying groundwater resources and greater use of SUDS and rainwater

harvesting. Hertfordshire County Council has prepared sustainability guidelines on

efficient water use which the Council intends to incorporate into the LDF. It will also

be necessary to explore ways in which sustainable design and construction principles

can be achieved from the outset within new proposals.


12.0 The Economy

The Hertsmere Context

12.1 In 2005, unemployment in the Borough stood at 2% although there are pockets of

deprivation in Borehamwood with higher unemployment levels in excess of 4%. The

working population is very mobile with approximately 60% of the working

population commuting outside of the Borough and a high proportion of the

population classified as being within the professional and management category

sector.

12.2 The Borough has a strong local economy which serves both the local workforce and

those commuting into Hertsmere. Within the Borough, there are over 130 hectares

of land (312 acres) in use for employment generating activities including six

protected employment areas which provide 99 hectares of employment land. These

are the Cranborne Industrial Estate and Station Close in Potters Bar, Stirling Way and

the Elstree Way Corridor in Borehamwood, Otterspool Way in Bushey and

Centennial Park in Elstree which is also classified as a Hertfordshire Strategic

Employment site. Land use within these areas is controlled to ensure that

employment generating activities, many of which are unsuitable for residential or

town centre locations, remain the principal form of activity.

12.3 There are many smaller areas which although not protected, generate employment

on smaller sites and tend to be located within the town centres or wider urban area.

There are also some large employers located in the Green Belt, such as the Bio-

Products laboratories in Aldenham and the National Institute for Biological Standards

and Control site in South Mimms. These two areas alone provide a further 27

hectares of employment land.

12.4 The economic profile of the Borough is a changing one. There has been a long term

decline in the number of people employed in manufacturing, resulting in larger

warehouse buildings being redeveloped for smaller industrial units or as car

showrooms. A number of important employers such as T-Mobile have also vacated

offices in the Borough and relocated to the Hatfield Aerodrome Business Park

development, leaving some large office buildings vacant.

12.5 The Council is producing a study with St Albans City and District Council and

Welwyn Hatfield District Council to identify employment land supply, demand and

market trends in the area. The study is expected to be completed by April 2006 and

will assist in identifying those areas of the local economy which require further

protection or promotion. This is considered to be particularly important because of

increasing pressure to develop available brownfield land for new housing. 47.6% of

respondents in the recent household survey considered that the most appropriate

location for new housing should be on employment land, compared to land which

has not been previously been developed. It must also be remembered that a large

proportion of the workforce are not employed in designated employment areas.


Isues Affecting Hertsmere to 2021

12.6 The draft East of England Plan requires over 4,200 homes to be provided in

Hertsmere from 2001 to 2021 and it is important that sufficient employment land

remains to provide job opportunities and for the local population. If it is decided to

concentrate new homes within the existing urban area, sites currently used for

offices, warehouses and industrial units, will come under pressure to be re-

developed for housing.

12.7 There is also a perception of an over-supply of office accommodation in the Borough

given that a number of buildings have remained vacant, as a result of some

employers relocating. If these and other sites are solely developed for housing, the

key towns in the Borough may turn into a series of ‘dormitory’ settlements for those

working in nearby London, Watford and Hatfield, rather than as an attractive

business destination serving the local and wider communities.

12.8 The television and film studios in the Borough remain one of its key assets and are

an important source of local employment. However, many of the other business

premises located in the area date from the 1950s and 1960s and whilst there is still

demand for offices and industrial floorspace in the Borough, the condition of many

buildings does not meet modern day requirements.

12.9 Adequate flexibility may need to be provided to enable existing businesses to

redevelop and upgrade their accommodation, given the age and condition of many

buildings. This may include the need for sufficient off-street parking,

notwithstanding Government policy seeking caps on parking levels as a means of

reducing congestion and pollution. There may also be some pressure to allow

existing major operations in the Green Belt to modernise or expand, if they are to be

able to carry out their business effectively.

12.10 The Council will need to consider developing a strategy to protect those job

opportunities and businesses which intend on remaining in or relocating to the

Borough. Rather than traditional industrial uses, activities such as waste collection

and recycling, call centres and distribution depots are increasingly requiring modern

premises close to major centres of population. Given the Borough’s location close to

London and Watford, there is still likely to be pressure to maintain a supply of land

for these activities, to avoid new sites in the Green Belt or on other open land

having to be developed.

12.11 Finally, establishing whether the right skills exist within the local population for local

employers must also be done. Although a number of high quality jobs exist within

the science, office and I.T. sectors, it is not clear whether there are sufficient

opportunities available for the local population. The development of hotels and retail

warehouses in some employment locations, such along Elstree Way or at Stirling

Corner in Borehamwood, has provided jobs which are either part time or in some

instances, lower paid. Local planning policies must provide sufficient flexibility to

enable developments to come forward which can deliver a mix of jobs for the local

community.


13.0 Transport and Parking

13.1 In many respects Hertsmere is a well-connected borough. The principal towns in the

Borough are located close to the M1, M25 and A1 / A1(M) and there is good access

to the national rail network. The East coast mainline from Kings Cross passes

through Potters Bar, Thameslink services run from Elstree & Borehamwood and

Radlett through central London to Brighton and Bedford and there are links to the

west coast mainline from Bushey via Euston or Watford Junction.

13.2 Whilst north-south road and rail links across the Borough are well developed, east-

west links are poor - with the exception of the M25 - resulting in relatively low levels

of public transport movement between towns within the Borough. The majority of

local trips are most easily undertaken by car.

13.3 The 2001 Census revealed that 60% of Hertsmere’s working residents commute

outside of the Borough to work while more than 25,000 people working in the

Borough live elsewhere.

13.4 Travel movements in the Borough can be broken down into:

• Through traffic using the national motorway and rail networks;

• Commuter movements into and out of London along the main rail corridors;

• Localised traffic movements within the main towns; and

• Movements along local roads between the main towns and adjacent urban

centres such as Watford and Hatfield

13.5 Accessibility to public transport and services has also been affected by the different investment

priorities of rail franchises. Although the majority of the Borough’s population lives within the

larger settlements of Borehamwood, Bushey, Radlett, Potters Bar and Shenley, significant

numbers of residents live in smaller villages and more isolated areas where the car is presently

the only realistic choice for most journeys.

13.6 At an average of 1.36 cars per household, levels of car ownership are almost 25%

above the national average and on the increase. These high levels of ownership and

the predominance of the car as the preferred mode of travel can lead to congestion

at key junctions and has resulted in the designation of Air Quality Management

Areas in Elstree and Potters Bar. The motorways running through the borough also

have noise and visual impacts on the Borough.

13.7 Responsibility for highways issues is largely shared between Hertfordshire County

Council and central Government. The Government is responsible for motorways and

trunk roads whilst the County Council has responsibility for the remainder of the

road network, rights of way and for developing overall strategy for the County

through the Local Transport Plan. Major future schemes affecting Hertsmere include

the widening of the M25 to four lanes through the Borough.

13.8 From January 2006, the Council will have responsibility for all aspects of parking

enforcement, as well as administering concessionary bus passes and providing

support for the community transport ‘Roundabout’ scheme. Hertsmere LDF policies

cannot provide new roads, major public transport schemes or controlled parking

zones but it can have a major influence on travel habits. The LDF will need to

develop standards for off-street parking provision, control the location of new


development and set out guidelines for securing financial contributions from

developers for transport improvements - known as Section 106 agreements.


Car ownership and car parking provision

13.9 Car ownership is likely to continue rising over the period of the LDF. In much of the

Borough, the Council’s parking standards for new residential development are out of

step with government policy guidance and a sensible balance will need to be found.

Large amounts of off-street car parking can result in less efficient use of land and

may be less appropriate where alternative transport modes are available. The LDF will

also need to consider the legitimate parking needs of businesses and homes which

are located in more remote locations.

13.10 The planning system has a role to play in influencing travel choice but cannot alone

influence individuals’ economic or lifestyle choices - such as the levels of car

ownership. Strict adherence to government targets can also have a negative impact in

places, by increasing on-street parking and related congestion and road safety.

However, the recent survey of householders in the Borough revealed that almost 60%

of residents consider that government caps on off-street parking for new development

set are “about right” - although the figure varied in some parts of the Borough.

Reducing the need to travel

13.11 Current policies look to direct trip-generating development towards Borehamwood,

Bushey, Potters Bar and Radlett, on the basis that alternative modes of transport are

more readily available there. This approach is broadly consistent with national

planning policy and there continues to be pressure to build at greater intensities near

to town centres and train and bus stations. Government policy also seeks to locate

different types of activities together in mixed use schemes, to reduce to need for

travel between places of residence, work and leisure.

Greater access for non-car users

13.12 Given the cost of improving public transport, Green Travel Plans are a potentially

useful planning tool, requiring new commercial developments to consider the needs

of employees and visitors and make provision for cycling, walking and car share

initiatives. Through the LDF, it will be possible for the Council to broaden the range of

developments which are required to include a Green Travel Plan. At the same time,

the Council can secure improvements via the Watling Chase Greenways Project to

facilities, routes and crossings for cyclists and pedestrians, by pursuing financial

contributions from developers to fund them.

13.13 It is also important to retain and develop better links for leisure users and these issues

are discussed in the Environment and Open Space section. The Local Plan identifies

key gateway sites for access to the Watling Chase Community Forest and continues

to develop non-car routes and facilities through the Watling Chase Greenways

project. Providing access to the countryside is a key objective of Hertsmere’s

Community Strategy.


14.0 Town Centres and Shopping

14.1 The four largest settlements in Hertsmere - Borehamwood, Potters Bar, Bushey and

Radlett - provide an important range of shopping facilities and other services. The

main shopping areas tend to be dominated by small and independent retailers,

although a number of national multiples have located in and around the largest

town centres.

14.2 The largest town centre is located in Borehamwood and comprises a series of the

shops along Shenley Road along with the large Tesco superstore, the Borehamwood

Shopping Park and the Curzon Cinema. In recent years, more mainstream retailers

including M&S, Argos, Next and WHS have moved into the shopping park which

has given a boost to the shopping attractiveness of Borehamwood town centre.

Although concerns remain over the quality of shopping available elsewhere in the

town centre, there are also plans for Top Shop, Top Man and Dorothy Perkins to

move into the shopping park.

14.3 There are a number of large shopping centres close to the Borough serving local

residents. These include the Harlequin Centre at Watford, Brent Cross shopping

centre in North London, the Galleria at Hatfield and the Sainsbury’s / M&S

Savacentre shops at junction 22 of the M25. Local towns are less likely to compete

directly with these centres and it needs to be established if there is enough

shopping demand (and land) for more retail floorspace. The role of local street

markets must also be taken into consideration.

14.4 In recent years, there has been increased pressure within the principal shopping

areas for more non-retail uses, particularly for eating and drinking establishments.

There has also been a clear trend for the large supermarkets to change their trading

formats. They now sell a wider range of non-food goods from their larger stores and

have also moved into smaller high street units, such as the Tesco Express stores in

Radlett and Bushey.

14.5 The shopping areas in the Borough are classified into a ‘retail hierarchy’, defining 28

shopping areas falling into six main categories:

1. Town Centre (Shenley Road, Borehamwood)

2. Local Town Centre (Darkes Lane, Potters Bar)

3. District Centres (High St Potters Bar, High St Bushey, Bushey Heath shops

and Radlett)

4. Neighbourhood Centres (such as Leeming Road shops, Borehamwood or

Elstree village centre)

5. Local Parades (such as Andrew Close, Shenley)

6. Individual shops (such as Organ Hall Road, Studio Way)

14.6 At the same time, the Government sets out in the Use Classes Order how town

centre and other uses should be broken down into different classification groups.

For many years, eating and drinking establishments were grouped together in one

use class (A3) making it difficult to control the types of activity taking place in a


particular premises. The Government recently amended the Use Classes Order and

created a number of new use classes, recognising that dining-in restaurants have a

very different impact on a locality compared to hot food take-aways, pubs and bars.

Clearly, eating establishments can attract people into a struggling shopping area,

but a limit may need to be set on the type and quantity of premises.

14.7 A Council survey undertaken in July 2005 revealed that across the Borough, 57% of

units are in use for retail (A1) purposes, 10% as a restaurant/café (A3), 1% as a pub

or wine bar (A4) and 5% for hot food take-away (A5). Approximately 1 in 5

surveyed units were used for non-retail purposes and there was an overall vacancy

rate of 5%. Within individual centres across the Borough, the following uses were

identified:


14.8 The Borough’s towns fall within the catchments area of number of larger centres

resulting in shopping expenditure being taken out of the Borough, particularly for

mainstream clothes and shoe retailing. However, there continues to be a need for

the Borough’s town centres to remain attractive and vibrant places with shops and

facilities to meet the needs of the local population.

14.9 There is clearly competition for retail expenditure within the Borough. Whilst it is not

the role of the planning system to preserve existing commercial interests, changes in

trading formats can have a substantial effect on the level of competition to existing

shops. The expansion of non-food retailing outside of town centres, when such

goods can still be sold from town centres, is capable of undermining the viability of

the Borough’s centres. The retailing of clothing, sports equipment, books, music and

other ‘comparison’ goods outside of town centres - whether from supermarkets or